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07/18/2000, 5 - A. APPEAL OF THE ARCHITECTURAL REVIEW COMMISSION ACTION REGARDING A WIRELESS ANTENNA AND EQUIPMENT INSTALLATION AT 0 HIGUERA STREET (ARC 36-00); AND B. REVIEW OF THE CITY'S CURRENT GENERAL PLAN POLICIES RELATED TO LOCATION OF TELECOMMUNICA
i Council "°7- if- o jagenda Repout �N� 5 CITY OF SAN LUIS OBISPO FROM: Arnold Jonas, Community Development Director Prepared By: Peggy Mandeville, Associate Planner SUBJECT: A. APPEAL OF THE ARCHITECTURAL REVIEW COMMISSION ACTION REGARDING A WIRELESS ANTENNA AND EQUIPMENT INSTALLATION AT 0 HIGUERA STREET(ARC 36-00); AND B. REVIEW OF THE CITY'S CURRENT GENERAL PLAN POLICIES RELATED TO LOCATION OF TELECOMMUNICATIONS FACILITIES CAO RECOMMENDATION A. Adopt a resolution, upholding the action of the Architectural Review Commission granting final approval to the project, based on findings and subject to conditions of approval. B. Reaffirm that staff and the Architectural Review Commission are implementing the City's General .Plan policies regarding the location of telecommunications facilities appropriately and direct staff to evaluate the appropriateness of allowing wireless telecommunication facilities to locate within other zones of the City if the facilities can be incorporated into the building design without being visible in conjunction with a future batching of zoning ordinance amendments. REPORT IN BRIEF A board member of the Villa Fontana Homeowners Association has appealed the Architectural Review Commission decision to approve an array of three antennas on an existing monopole and support equipment within an existing equipment shelter at 0 Higuera Street (South Street hills). The appeal raises a variety of issues; some relating specifically to the appeal and others relating to how the General Plan policies regarding the location of wireless telecommunication facilities are being implemented. The appeal centers around the visual clutter that is being created at this hilltop location and the need for landscaping to screen these facilities. The applicant's proposal however does not further impact this visual clutter and therefore staff and the ARC do not recommend the inclusion of additional screening. In conjunction with Council's review of this appeal, staff and the ARC would like direction from the Council on the implementation of the General Plan policies relating to the location of wireless telecommunication facilities. Staff has assumed that the policies are being appropriately followed, however, circumstances may have changed over time and therefore new direction may be needed. 5-1 Council Agenda Report—Pac Bell Wireless Appeal(ARC 36-00) -" Page 2 DISCUSSION Situation On June 19, 2000 the Architectural Review Commission upheld the Community Development Director's decision and granted approval of an array of three new telecommunications antennas on an existing monopole and support equipment within an existing equipment shelter at 0 Higuera Street (South Street Hills)based on findings and subject to nine conditions. On June 26, 2000 Peter Priebe, board member of the Villa Fontana Homeowners Association, appealed the Commission's decision to the City Council. Data Summary Address: 0 Higuera Street Applicant/Appellants: Pacific Bell Wireless/Peter Priebe Property Owner/Lessee: Mike Spangler/Guy Hackman Zoning: Conservation/Open Space (C/OS-40) General Plan: Open Space Environmental status: 'A Mitigated Negative Declaration was approved by the Planning Commission on December 10, 1997. Site Description The site is a three-acre leasehold on top of the South Street hills, accessed by a graded dirt road leading up the hill from the Villa Fontana residential development (see Attachment 1, Vicinity map). The leasehold is currently developed with Municipal radio facilities, KIID's radio broadcasting antenna, two telecommunications monopoles accommodating three carriers, and an equipment shelter housing support telecommunications equipment. A variety of grasses grow amongst the site's serpentine rock outcroppings. Project Description Currently, SLO Cellular and Nextel Communications have each received approvals to locate a monopole within the South Street hills site. Each approval allowed a maximum of a 60 foot high monopole in order to encourage other telecommunication carriers (usually a total of 3 carriers) to, locate on the same monopole (also known as co-location) rather than having each carrier erect a separate monopole. These two monopoles have been erected, however, they have not been built to the approved 60 foot height limit. Instead, each carrier has erected their monopole to the height they need requiring any future carriers to pay for and erect the monopole extension to accommodate the additional antennas. To date, GTE has co-located on SLO Cellular's monopole and Pacific Bell Wireless and Crown Communications have requested to co-locate on Nextel's monopole. Pacific Bell Wireless is the project on appeal before the Council and Crown Castle is currently on appeal to the Planning Commission. 5-2 Council Agenda Report—Pac Bell Wireless Appeal(ARC 36-00) - Page 3 The applicant wants to locate support equipment within the existing equipment shelter and locate an array of three directional antenna mounted flush on Nextel's existing monopole. Although the applicant must extend Nextel's monopole in order to co-locate on it, approval for a height extension is not necessary because the 60 foot maximum height has already been approved by the Planning and Architectural Review Commissions. The applicant also wishes to modify Nextel's previous antenna approval which allowed 15 directional antenna and three omni-whip antennas (13 feet in height) with a total diameter of 16 feet (see Attachment 2, Photo simulations). The proposed modification would result in fewer and smaller pieces of equipment(no whip antennas and a 6-foot wide overall diameter). ARC Action On a 5-2 vote, the ARC denied the appeal,upholding the Community Development Director's decision to approve the array of three antennas and modifications to the previously approved antennas with an additional condition that the applicant explore the possibility of having two arrays of antennas, one above the other, that results in the Nextel antennas being mounted more closely to the monopole than shown on submitted plans. On a second 5-2 vote, the Commission asked staff to prepare a memo to the City Council requesting that they reevaluate the General Plan Policy regarding the consolidation of telecommunications facilities in a designated leasehold on the South Street hills. The Commission specifically asked that the placement and screening of monopoles be further studied, as well as the appropriateness of"opening up" other zones or sites for telecommunication facilities within the City. Because the project has been appealed to the City Council, staff is including a discussion of both issues within this report. ARC Appeal Peter Priebe, board member of the Villa Fontana Homeowners Association, appealed the Architectural Review Commission's decision to approve the new and modified antennas based on the following reasons (see Attachment 5, Appeal letter): 1. The ARC's approval does not contain any conditions that would mitigate the negative visual impact of the hilltop compound. The applicant argued that landscaping, if used as a screen for the chain link fence and support structures, would look "unnatural" on top of the hill. We contend landscaping would appear significantly more natural than the existing compound. Staff response: As noted in the ARC staff report (Attachment 6),the City can only condition the applicant to mitigate the visual impacts of their proposed equipment (three panel antennas each ]-foot by 4.5-feet in size), not the existing fencing, monopoles or structures which have been previously approved by the Planning and Architectural Review Commissions. The color photographs included in your agenda packets (and available for review in the Community Development Department) identify the antennas which are before the Council on appeal. Because the three relatively small antennas are proposed to be flush-mounted on the existing and 5-3 Council Agenda Report—Pac Bell Wireless Appeal(ARC 36-00) - Page 4 previously approved monopole, the visual impacts will be minimal and therefore staff does not recommend any further visual mitigation. If the Council determines that landscaping is necessary to provide additional visual screening, the landscaping should be of such a type as to grow approximately 50 feet in height to block the views of these three flush-mounted antennas. Similarly, the proposed support equipment will be located within an existing compound that also received prior approval. The new equipment will not be visible and therefore would not trigger additional visual screening. 2. The ARC's decision is insensitive to the fact that this hilltop is a critical visual element of the northbound gateway to the City. Staff response: The ARC is certainly concerned with the visual impacts of telecommunications facilities. Construction techniques, such as flat neutral tones for the monopoles and the rock screened equipment compound, all grew out of hearings before the ARC. However, the ARC's decision followed General Plan Land Use Element policy 6.2.2 which states that new wireless telecommunications facilities are appropriate at this specific location within the City subject to use permit and architectural review approvals. 3. The ARC and staff have determined that this application can be subject to further conditions, including but not limited to landscaping,yet have chosen not to attach any. Staff response: Staff has not recommended further visual mitigation because staff does not believe that the proposed antennas create a visual impact. It is important to remember that the portion of the project that is visible is the pole itself, which was approved as part of a prior action. As shown in the visual simulations provided by the applicant, the antennas themselves can barely be seen from approximately 50 feet away where as most of the viewing will be from much longer distances. The support equipment will be completely screened within the existing compound and will not be visible from any off site location. 4. The owner of the property has publicly stated his displeasure with the negative visual impact and condition of the existing hilltop. Staff response: Without being required by the City, the property owner has the ability to request city approvals for additional improvements to his property. Such improvements could include painting the existing structures a darker beige color to better visually blend into the hillside, replace the chain link fencing with vinyl coated chain link, reduce the size of the chain link enclosure, and/or paint the monopoles a neutral color. Because the property owner does not own most of these structures, he would need to obtain their approval before making any improvements. 5. The applicant has refused to consider landscaping on the grounds that water is unavailable on the hilltop. We believe that this applicant has enough resources and technology available to them to overcome this. 5-4 Council Agenda Report Pac Bell Wireless Appeal(ARC 36-00) - Page 5 Staff response: It is staff s understanding that the applicant does not want to pursue landscaping on the property for several reasons. One, the applicant does not feel they should be responsible for screening existing equipment and structures that have been previously approved without screening. .Two, the applicant feels that they have made an acceptable effort of reducing the visual impacts of their antennas by requesting a small number of them that can be flush-mounted to the existing monopole. And three, landscaping would do little to screen the three antennas which are almost 50 feet above the ground. Landscaping has also not been encouraged by staff. First, large trees and shrubs are not native to this serpentine hillside and may look out of character. Second, a previous field survey of the property revealed the presence of two species (San Luis Obispo mariposa lily and the Palmer's spineflower) that are listed in the California Native Plant Society's Inventory of Rare and Endangered Vascular Plants of California. The introduction of new plantings on the site would need to be evaluated for possible environmental impacts prior to implementing such a requirement. 6. The original rezoning of this hilltop in 1996 by the City Council was approved with the belief that this location would prevent the proliferation of antenna structures throughout the City. It was publicly stated during a use permit hearing on June 16, 2000 that there will indeed be further applications to the City in the very near future for structures such as this one in other areas. This use permit was sought (and approved) in order to add yet additional antennas to the structure that we are currently appealing(A 89-00). Staff response: This three-acre leasehold is the only hilltop location within the City limits that allows for the location of wireless telecommunication facilities. The City's General Plan and Zoning Regulations also allow such facilities to be located in the Public Facilities, Service Commercial, and Manufacturing zones. However, with the approval of this one hilltop location, a telecommunication facility can serve the entire South Higuera, Madonna and Stoneridge area without the need for multiple facilities at different locations to cover the same area. Indeed, when approving the land use change, the Council made a conscious decision to consolidate these facilities on a hill top location already disturbed with similar antennas rather than opening up other open space parcels for telecommunication use. 7. A denial of the current application by the City Council will lay the groundwork and set standards for future installations throughout the City and force applicants to develop less obtrusive structures that are appropriate to the visual character of San Luis Obispo. Staff Response: The Council's role in reviewing this appeal is to ensure that the visual impacts of these three antennas have been minimized. The Council may condition the project to provide landscaping beyond previous approvals if the Council determines that the addition of landscaping will minimize the visual impact of the three antennas. Setting standards for future installations should be handled separately at the policy level (see discussion below). 5-5 Council Agenda Report—Pac Bell Wireless Appeal (ARC 36-00) - Page 6 Review of General Plan Policies Related to Wireless Telecommunication Facilities To better put the issues raised in this appeal in context,the attached Architectural Review Commission staff report provides a brief history of the City's regulations and actions for locating telecommunications facilities in the City. City staff and the ARC would like direction from the Council on the implementation of the General Plan policies relating to the location of wireless telecommunication facilities. In summary, it is current policy of the Council to allow development of wireless telecommunication facilities on this hill top location provided measures are taken to minimize the visual impacts. To date,these measures have included co-locating up to three carriers on a taller single pole rather than three shorter separate poles. In addition,the ARC required similar co-location of equipment buildings within a screened enclosure area. Staff has assumed that the policies are being appropriately followed,however circumstances may have changed over time and therefore new direction may be needed. New direction could take a variety of forms. Staff offers the Council the following range of direction for discussion purposes. A. Condition any future monopole requests to minimiTe their visual impacts to a greater degree than has been done to date. This could be accomplished by the use of camouflaged monopoles that look like trees and/or landscaping the site with tall trees. B. Direct staff to propose revisions to the City's Zoning Regulations which would allow wireless telecommunication facilities to locate within other zones of the City if the facilities can be incorporated into the building design without being visible. There are facilities that have been approved in other jurisdictions that look like church steeples, flag poles,building parapets and other architectural features. The highly desired area according to cellular carriers is the central commercial and surrounding office districts. These locations are desired to augment the South Street hills site, not replace the South Street hills site. C. Direct staff to propose revisions to the City's Zoning Regulations to allow wireless telecommunication facilities to locate on other open space hilltop locations in the City to possibly reduce the number of carriers who may wish to locate at this site. D. Direct staff to propose revisions to the City's Zoning Regulations to limit the number of monopoles and/or carriers at a given site to minimize potential visual impacts. The Council should discuss these suggestions and provide direction to staff as to whether any of these options should be explored. CONCURRENCES Comments received from other departments are included as conditions of approval. 5-6 Council Agenda Report—Pac Bell Wireless Appeal(ARC 36-00) - Page 7 FISCAL 11VIPACTS None ALTERNATIVES 1. Adopt a resolution upholding the appeal and denying the project based on specific findings. 2. Continue the matter with specific direction to staff and/or the applicant for additional information. Attachments: 1. Vicinity map 2. Photo simulations (color copies included in Council packets) 3. Resolution denying the appeal and approving the project 4. Resolution upholding the appeal and denying the project 5. Appeal letter 6. ARC Report and attachments 7. 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ON 401 ��•av II i _ Iv -1 • rn�Marr Z e existing Aguyed lattice tower d ■m existing cell antennas d CL 0 0. 5 .✓� 1 4 T �;F� .. ,S ....1• .LLC _ 1 Com^ ^ 3 — Sou#IStreet=Hilt . =' _ zeiia �ryueraati"..::. . ... i a _ aai t;;IS Obispo ca:9-Mf: :5 0 AA701 i c 4 IM am O M a 0 � c 'o - 6 3 0 Ci e e a propo ac Bell antennas e 0 O o a 0 `o T Oyi� T � '\ \i ��.�t •tel•\ �\` A �.. ` Y S o r Y a i o m Y r �;;:it 'ci"'� _ , �'_:_.. . _ • i d: A I Es:rVIV _ ..�r'- f •�� y' t t i��a r� .- • (4\ X �I 1 II•rRj -4 L� 1'tt`-� ' t '' • � 1 ; -�'. r ^� wn F � .trtYrr��•�'" Aim-lm5LY 3 RESOLUTION NO. (2000 Series) A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO DENYING AN APPEAL OF THE ARCHITECTURAL REVIEW COMMISSIONS ACTION,THEREBY APPROVING THE WIRELESS TELECOMMUNICATION'S CARRIER ANTENNA AND EQUIPMENT INSTALLATION AT 0 HIGUERA STREET (ARC 36-00) WHEREAS, the City Council conducted a public hearing on July 18, 2000, and has considered testimony of interested parties including the appellants, the records of the Architectural Review Commission hearing and action, and the evaluation and recommendation of staff, and WHEREAS, the City Council has determined that mitigation measures established for the use permit and architectural review for the Nextel Communications project (ER 55-97) adequately addressed the potential environmental impacts resulting from construction and operation of a wireless telecommunications carrier at this location. BE IT RESOLVED,by the City Council of the City of San Luis Obispo as follows: SECTION 1. Findings. That this Council, after consideration of project plans for ARC 36-00 and the Architectural Review Commission's actions, public testimony, the appellant's statements, staff recommendations and reports thereof,makes the following findings: 1. As conditioned, the proposed new antenna and modifications.to the existing antenna and monopole will be consistent with the General Plan policies governing hillside development by: (a) including planting which is compatible with native hillside vegetation and which provides a visual transition from developed to open areas; and (b) utilizing materials, colors and textures which blend with the natural landscape and avoid high contrasts. 2. The proposed new antenna and modifications to the existing antenna and monopole comply with property development standards in the C/OS-40 zone with the approval of an administrative use permit. 3. The proposed new antenna and modifications to the existing antenna and monopole will not adversely affect the health, safety and welfare of the persons living or working in the vicinity because they have been designed in such a way as to minimize visual impacts to adjacent properties and the City as a whole. 4. As conditioned, the proposed new antenna and modifications to the existing antenna and monopole will be consistent with ARC guidelines which call for minimizing the visual impacts of hillside development. 5. The proposed monopole height extension of the Nextel monopole is consistent with the Architectural Review Commission's December 1, 1997 approval of a maximum combined height of the monopole and antennas to accommodate three carriers (approximatel 01f�,et). Afir�eu tt� .rr 3 Resolution No. (2000 Series) Page 2 6. The proposed modifications to Nextel's antenna equipment results in fewer and smaller pieces of equipment (no whip antennas and a six foot wide overall diameter) than the Architectural Review Commission's December 1, 1997 approval of Nextel's request for 15 directional antennas (1 foot x 4 feet in size) and 3 whip antennas (13 feet in height) within a 16 foot wide diameter. SECTION 2. Approval. The appeal is hereby denied, and the request for an array of three antennas and modifications to an existing antenna is approved subject to the following conditions: 1. The applicant shall obtain use permit approval. 2. Maximum combined height of the monopole and antennas shall not exceed 60 feet. 3. The monopole shall be a constructed of a galvanized metal and have a tapered design to allow the co-location of a total of three carriers. 4. Prior to finaling the building permit for this monopole extension,the Building Inspector shall confirm that the monopole has been erected in a true vertical position and it is not leaning. 5. The monopole and antennas shall be painted a neutral color at the time of construction or allowed to remain unpainted for a period of six months during which time the galvanized finish will naturally weather to a dull gray finish. After the six month period has ended, the Director of Community Development will determine whether or not the applicant needs to paint the features to further lessen their visual impact. 6. The cabinet equipment associated with the monopole and antennas shall be located within the existing equipment shelter as shown on submitted plans. To ensure inside of the shelter visually blends into the hillside, the applicant shall paint the remainder of the inside of the shelter to match the existing portions of the interior that have already been painted. 7. The applicant shall submit written evidence of the right to access the site by way of neighboring private properties. If permanent access is granted, the applicant shall enter into an agreement with the City to share the cost of ongoing maintenance of the road prior to approval of a building permit. If construction only access is granted,then arrangements shall be made with the Fire Department to guarantee any required restoration and/or repairs needed to the roadway as a result of any damage caused by the applicant's contractor(s) during construction,as determined by the City. 8. All areas disturbed by the construction and areas around the equipment shelter where reseeding has not been successful to date shall be reseeded by the mixture of Eschscholzia californica(California poppy), Lupinus suculentus(lupine),Nassella lepida(needlegrass) and 5-12 Atthul t-�'r 3 Resolution No. (2000 Series) Page 3 Nassella pulchra (purple needlegrass). The hydroseed mix shall be in a wood fiber mulch with no fertilizers or nutrients added. 9. Native Sons Nursery shall be contacted to see if there is an available source of plants, bulbs, or seeds for the San Luis Mariposa Lily. Unless unavailable, these shall be included in the revegetation of the site. 10. The applicant shall explore with Nextel the possibility of having two arrays of antennas, one above the other, that results in the antennas being mounted more closely to the monopole. than shown on submitted plans for ARC consideration. The total height of the monopole with the possibly modified array of antennas shall not exceed 60 feet. On motion of , seconded by and on the following roll call vote: AYES: NOES: ABSENT: the foregoing resolution was passed and adopted this 18th day of July,2000. Mayor Allen Settle ATTEST: City Clerk Lee Price APPROVED: jity/Lordiey J Jor,14 en 5-13 A%AcH h'1a-r1" t RESOLUTION NO. (2000 Series) A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO UPHOLDING AN APPEAL OF THE ARCHITECTURAL REVIEW COMMISSION'S ACTION,THEREBY DENYING THE WIRELESS TELECOMMUNICATIONS ANTENNA AND EQUIPMENT INSTALLATIONAT 0 HIGUERA STREET(ARC 36-00) WHEREAS, the City Council conducted a public hearing on July 18, 2000, and has considered testimony of interested parties including the appellants, the records of the Architectural Review Commission hearing and action, and the evaluation and recommendation of staff; and WHEREAS, the City Council has determined that mitigation measures established for the use permit and architectural review for Nextel Communications (ER 55-97) adequately addressed the potential environmental impacts resulting from construction and operation of a wireless telecommunications carrier at this location. BE IT RESOLVED,by the City Council of the City of San Luis Obispo as follows: SECTION 1. Findinjs. That this Council, after consideration of project plans for ARC 36-00, the Architectural Review Commission's action, public testimony, the appellant's statements, staff recommendations and reports thereof, makes the following finding: (Council to insert findings here) SECTION 2. Denial. The appeal is hereby approved, and the request for a wireless telecommunications facility is denied. On motion of , seconded by and on the following roll call vote: AYES: NOES: ABSENT: the foregoing resolution was passed and adopted this 18th day of July, 2000. 5-14 Resolution No: (2000 Series). Page:2 Mayor Allen,Settle ATTEST`. City Clerk Lee.Price APPROVED: City Attomey Jeff.Jorgensen 5=15 5 June 24,2000 City Council City of San Luis Obispo 990 Palm St. San Luis Obispo,CA 93401 Re: Appeal of ARC 36-00 Dear Mr.Mayor and Council Members, As a member and on behalf of the Board of Directors of Villa Fontana HomeI am appealing owners Association,p neighborhood roval of the above 54 residences located on the southern base of the South Street l lop.lls,Our appy is based on the following: mentioned case regarding communications equipment on the hilltop. • The ARC's approval does not contain any conditions that would mitigate the negative visual impact of the the chain link fence and support billtop compound.The applicant argued that landscaping,if used as a screen for structures,would look-unnatural"on top of the bill-We contend that landscaping would appear significantly more natural than the==&compound. • ' fad that this hilltop is a critical visual element of the northbound The ARCs decision is insensitive to the gateway to the city. this application can be sublet[to further conditions, including but not • The ARC and staff have determined that limited to landscaping,yet have chosen not to attach any. • The owner of the property has publicly stated his displeasure with the negative visual impact and condition of the existing hilltop. e.June 19,2000;PD. • The applicant has refused to consider landscaping on the grounds that water is unavailable on the hilltop.We to them to overcome this- believe that this applicant has enough resources and technology wailabl roved with the belief that this location • The original rezoning of this hilltop in 1996 by the City Council was approved It was publicly stated during a Use would prevent the proliferation of antenna structures throughout the city' near Permit hearing on June 16,2000 that there will indeed be further applicaoanto d the Cit di m order o add yeti n the very for structures such as this one in other areas.This Use Permisought se P�tpved)iApplication order to a ad i' n antennas to the structure that we are currently appealing. oundwork and set standards for future • A denial of the currant application by the City Council will!ay the gr ro riate to installations throughout the city and force applicants to develop less obtrusive structures that are appP the visual character of San Luis Obispo. Please be advised that due to prior commitments with my employer,I will be this ailable matter isoapprblic eciated cion of this appeal between July 15 and July 23,2000.Your consideration in scheduling RespectfWly Submitted t Zer`pn Treasurer Board of Directors Villa Fontana Homeowners Association Peter Priebe 2860 Los Alamos Ct. RECEIVED San Luis Obispo,CA 93401 (805)542-9307 SLO CITY COUNCIL CITY OF SAN LUIS OBISPO ARCE[ITECTUR AL REVIEW COMMISSION STAFF REPORT rrEm# BY: Peggy Mandeville,Associate Planner(781-7170)1 MEETING DATE: June 19,2000 FROM: Ron Whisenand,Development Review Managea FILE NUMBER: ARC 36-00 PROJECT ADDRESS: 0 Hiauera Street SUBJECT: Continued public hearing on an appeal of the Community Development Director's approval of architectural review for new telecommunications equipment on an existing monopole and modifications to the existing Nextel equipment. SUMMARY RECOMMENDATION Uphold the Community Development Director's decision and grant final approval to the project based on findings and subject to conditions noted at the end of this report. BACKGOUND Situation The General Plan amendment (GP 105-95) allowing development of new wireless telecommunication facilities on a portion of the South Street Hills requires such facilities to obtain architectural and use permit approval. The administrative use permit approval was granted on April 7, 2000(approval letter attached). Data Summary Applicant: Pacific Bell Wireless Property Owners: Michael and Katherine Spangler Zoning: Conservation/Open Space with a 40-acre minimum lot size General Plan: Open Space Environmental Status: A Mitigated Negative Declaration was approved by the Planning Commission on December 10, 1997 Site Description Pacific Bell Wireless wishes to co-locate on Nextel Communications existing monopole inside the 3-acre leasehold on top of South Street hills. The leasehold is currently developed with Municipal radio facilities, KIID's radio broadcasting antenna,Nextel Communications, GTE and Cellular One's facilities. The remainder of the 40-acre parcel outside the leasehold is vacant. Proiect Description The applicant wants to locate support equipment within the existing equipment shelter and co- locate on Nextel's monopole with 3 directional antennas(1 foot x 4.5 feet in size) mounted flush against the monopole. The applicant also wishes to modify Nextel's antenna approval which allowed 15 directional antennas and 3 omni whip antennas (13 feet in height) with a total 5-17 ATrAcH ARC 36-00,Pacific Bell Wireless Page 2 diameter of 16 feet. The proposed modification would result in fewer and smaller pieces of equipment(no whip antennas and a 6-foot wide overall diameter). Appeal of Director's Decision The Community Development Director reviewed the applicant's plans for architectural review of new telecommunications equipment on an existing monopole and modifications to the existing Nextel equipment and determined that the architectural review was minor or incidental because carriers locating on existing monopoles require minor or incidental architectural review rather than Architectural Review Commission review. On April 18, 2000 the Director approved the applicant's request subject to 6 findings and 9 conditions of approval (see attached approval letter). On April 20, 2000, Larry Stabler appealed the Director's decision (see attached appeal letter). Mr. Stabler appealed the decision because he believes alternatives to the decision could be discussed in greater detail- In his appeal letter, he referred to the color of the structures, the incorporation of plant materials, and the disguising of antennas and other structures as alternatives that could be discussed in greater detail. ARC DIRECTION FROM 6/5/00 MEETING At the 6/5/00 ARC meeting, the Commission heard the appeal and continued action on the item with direction to staff and the applicant to return to the Commission with: 1. More information on the available types and mounting options for the Nextel antennae on the monopole such as flush mounted and whip style designs. Staff has contacted Nextel regarding possible options to their antenna and mounting designs. According to Nextel,they need to extend their panel(also know as directional) antennas out from the monopole in order to provide adequate space for the 12 panel antennas. By extending their antenna out from the monopole, they are able to locate 12 antennas around the monopole (Pac Bell's antennas can be flush mounted because they need only 3 antennas). Pac Bell's antennas cannot be moved down further on the pole because their reception capabilities would be reduced in addition to the fact that they need to provide clearance for the third carrier (application ARCTvTA 89-00 accepted for processing June 7, 2000). Finally, Nextel is requesting panel antennas because they direct their signal whereas whip antennas broadcast their signal in all directions which have more potential for frequency interferences. Nextel's written response is attached to this report. On December 1, 1997 the Architectural Review Commission approved Nextel's request to locate 15 panel antennas and 3 whip antennas with a total diameter of 16.feet. As a part of their action, the ARC increased the maximum height of the monopole (requested at 48 feet) to 60 feet to allow for two other carriers to locate on the monopole. Given the fact that Nextel has been approved to locate these 18 antennas on the monopole, staff recommends that the Commission 5-18 ATrAc m - ARC 36-00,Pacific Bell Wireless Page 3 support their requested modification for 12 panel antennas with a diameter of six feet because of the reduction in size and number of antennas from what is already approved. 2. Options that the ARC has in terms of conditioning this project to include landscaping beyond previous approvals. The new antenna request before the Commission is to locate three flush mounted panel antennas on an existing monopole previously approved by the ARC. The 60 foot high monopole previously approved is not up for review as part of this application. The Commission's role in reviewing this request is to ensure that the visual impacts of these three antennas have been minimized. The Commission may condition the project to provide landscaping beyond previous approvals if the Commission determines that the addition of landscaping will minimize the visual impacts of the three antennas. It is staffs opinion that the visual impacts of the three antennas have been minimized by flush mounting the antennas. In addition, landscaping would do little to screen a 60 foot high antenna and therefore no further mitigation should be required. If the Commission finds that the goal is to minimize the visual impacts of any future monopoles and antennas at this location, the Commission can request that Council revisit the General Plan policy which allows the monopoles on this hillside and/or condition any future monopoles to minimize their visual impacts to a greater degree than what has been done to date. EVALUATION To better put this project in context,the following is a brief history of the City's regulations for locating telecommunications facilities in the City. The 1994 Land Use and Open Space Elements contained very specific language restricting development in hillside locations. More specifically,the Elements contained policies restricting development located beyond the City's development limit line. Second,the Land Use Element contained a policy that development on hillside parcels shall avoid poles. And third,the Open Space Element contained a policy requiring development to locate near the base of a hillside. In 1995, SLO Cellular applied for a General Plan text amendment to change the language within these elements in order to enable wireless telecommunications facilities to locate inside an existing 3-acre leasehold on top of the South Street hills. With approval of the General Plan amendment in 1996,the San Luis Obispo City Council allowed wireless telecommunication facilities to locate in the PF, C-S,and M zones as well as one location within the Conservation/Open Space(C/OS)zone inside the 3-acre leasehold on the South Street hills,under certain conditions. The specific language that was added to the General Plan Land Use Element states, 5-19 �}GH• � ARC 36-00,Pacific Bell Wireless Page 4 "New wireless telecommunication facilities may be appropriate on South Street Hills inside the 3-acre leasehold already developed with commercial and municipal radio facilities, subject to use permit approval and architectural review and approval. Applicants shall comply with all other provisions of this section, and demonstrate that: a) new facilities will not individually or additively interfere with City radio equipment necessary for emergency response coordination, and b) will not cause on-site radio frequency radiation levels to exceed exposure standards established for the general public by the American National Standards Institute." When this General Plan Amendment request was before the Planning Commission and City Council,visual impacts were identified as a particular concern. It was brought to the Commission and Council's attention that a number of options were available to minimize visual impacts. Those included co-locating several carriers on a single antenna,disguising the antennas as trees and locating the equipment cabinets within a bunker built into the hillside. The Mitigation Monitoring Program adopted by the Council aspart of the General Plan Amendment addressed visual impacts as follows: 1. Radio facilities, including cellular base stations,proposed for the South Street Hills site shall be subject to review and approval by the Architectural Review Commission with the objective of minimizing visual impacts consistent with hillside development standards outlined in the Land Use and Open Space elements. 2. Facilities shall be designed to enable co-location with other similar facilities. 3. Any application for architectural review of a new radio facility shall include an independent visual analysis of the site. The analysis shall provide visual exhibits for the use in public hearings that depict a realistic interpretation of the project superimposed on the backdrop of the site,as it can be seen from throughout the City. Visual exhibits shall be subject to the approval of the Community Development Director. The analysis shall provide alternative design solutions, such as undergrounding support buildings, co- location and alternative siting options for the ARC's consideration. Staff believes that two overriding considerations led to Council approval of this General Plan amendment which allows telecommunications facilities on the South Street hills. One,the site was already visually impacted by the presence of communications facilities and structures; and two,use of this site can serve the entire South Higuera, Madonna and Stoneridge area without the need for multiple facilities at several different locations to cover the same area. Since the General Plan Amendment approval,the Planning Commission and Architectural Review Commission have approved two monopoles (SLO Cellular and Nextel Communications) to locate on the site. 5-20 A.t l. (to ARC 36-00,Pacific Bell Wireless Page 5 The Planning Commission use permits included approval of a master concept plan for future carriers(ie. Pacific Bell Wireless)to locate support structures within a common shelter confined by retaining walls and screened with rock and earth berms. Additionally,the Commission approved future carriers that show installations that are consistent with the masterplan to submit applications for administrative,rather than Planning Commission,use permit and minor or incidental architectural review instead of Architectural Review Commission review. The Architectural Review Commission's approvals of the two monopoles included a maximum height of 60 feet to accommodate three carriers,a tapered monopole design, an equipment shelter built into the hillside to house associated telecommunications equipment, and the requirement that the monopoles and antennas be painted a neutral color at the time of construction or allowed to remain unpainted for a period of six months during which time the galvanized finish will naturally weather to a dull gray finish. The Commission specifically chose not to approve a darker color that would blend into the hillside such as has been suggested by the appellant because the antennas and monopoles are silhouetted against the sky from many locations in the City. Staff supports the alternative of allowing the galvanized metal to weather because in conversations with other carriers and other jurisdictions, staff has been told that the unpainted galvanized metal over time is less visible than a painted structure. The Commission's approvals also did not include the requirement to make the monopoles look like trees, or to plant trees around the site, because the inclusion of trees along the ridgeline would look unnatural given the fact that serpentine rock hillsides such as this one do not support trees under natural circumstances. Thus, the appearance of trees, or tree camouflage, would appear as unnatural on the ridge as the antennas. Additionally, any planting of trees would take many years to reach the screening height of 60 feet and these trees would need to be trimmed so an not to block the broadcast signals. Environmental Mitigation The environmental mitigation (ER 43-95) approved in conjunction with the General Plan amendment allowing wireless telecommunication facilities on South Street Hills requires: 1. Radio facilities, including cellular base stations, proposed for the South Street Hills site shall be subject to review and approval by the Architectural Review Commission with the objective of minimizing visual impacts consistent with hillside development standards outlined in the Land Use and Open Space Elements. Hillside development standards are specifically addressed below. 2. Facilities shall be designed to enable collocation with other similar facilities. 5-21 A-twrt lP ARC 36-00,Pacific Bell Wireless Page 6 The objective of this measure is to minimize visual impacts by requiring carriers to share facilities. 3. Any application for architectural review of a new telecommunication facility shall include an independent visual analysis of the site. The analysis shall provide visual exhibits for use in public hearings that depict a realistic interpretation of the project superimposed on the backdrop of the site, as it can be seen from throughout the city. Visual exhibits shall be subject to the approval of the Community Development Director. The analysis shall provide alternative design solutions, such as under-grounding support buildings, collocation, and alternative siting options for the ARC's consideration. Photographs were taken of a mock pole and antenna installation from various points around the City. Copies of the visual analysis are included in each Commissioner's packet(originals can be reviewed at the Community Development Department and will be available for review at the ARC meeting). No alternative design solutions were submitted, because staff and the applicant believed that this design complied with previous City direction and approvals. Hillside Standards Land Use Element Policy 6.2.2 states: Development including buildings, driveways, fences, and graded yard areas— on hilltop parcels shall: A. Be entirely within the urban reserve line or development limit line, whichever is more restrictive (though parcel boundaries may extend beyond these lines when necessary to meet minimum parcel-size standards) unless a location outside the urban reserve line or development limit line is necessary to protect public health and safety or as provided in subparagraph 1 below; 1. New wireless telecommunication facilities may be appropriate on South Street Hills inside the three-acre leasehold already developed with commercial and municipal radio facilities, subject to use permit approval and architectural review and approval. Applicants shall comply with all other provisions of this section, and demonstrate that: a) new facilities will not individually or cumulatively interfere with City radio equipment necessary for emergency response coordination, and b) will not cause on-site radio frequency radiation levels to exceed exposure standards established for the general public by the American National Standards Institute. A frequency analysis has been submitted as a part of the use permit application. The use permit was conditioned to ensure that there will be no radio interference with existing on-site facilities. 5-22 �tiTi4tt1 • (p ARC 36-00,Pacific Bell Wireless Page 7 B. Keep a low profile and conform to the natural slopes; C. Avoid large, continuous walls or roof surfaces, or prominent foundation walls, poles, or columns; D. Minimize grading of roads; E. Minimize grading on individual lots; generally, locate houses close to the street; minimi the grading of visible driveways; F. Include planting which is compatible with native hillside vegetation and which provides a visual transition from developed to open areas; G. Use materials, colors, and textures which blend with the natural landscape and avoid high contrasts; H. Minimize exterior lighting. Open Space Element Scenic Resources Policies (Page 74) state that private development should protect scenic resources by: 1. Designing roadways to minimize visual impacts and fit the natural terrain; 2. Locating structures so that they do not silhouette against ridge lines;and 3. Utilize building materials,colors, and textures that blend with the natural landscape. The applicant proposes to mitigate visual impacts of the equipment building by locating it within the existing recessed shelter area. As the Commission may recall, this new recessed shelter area, approved at part of the GTE request, will accommodate equipment cabinets for a total of 4 carriers. Project plans note that the Pacific Bell Wireless equipment will be adequately screened within the existing equipment shelter. Conclusion There are several cellular carriers, personal communication service carriers, and other hybrid paging service carriers licensed to provide service in San:Luis Obispo. Staff estimates that-as many as eight different installations (possibly more) could ultimately request to locate on the South Street Hills site, in addition to municipal radio facilities and the KIID broadcasting antenna Therefore, it is important that each installation be as unobtrusive as possible. Certainly the recessed equipment shelter goes a long way to this end, however the screening of the monopoles and antennas is much more difficult. In lieu of allowing each carrier to have their 5-23 PrtTr�ut• (p ARC 36-00,Pacific Bell Wireless Page 8 own monopole, the Planning and Architectural Review Commissions have conditioned the two monopole approvals to allow for several carriers to co-locate on a single monopole. Additionally, previous approvals have required that the monopole and associated antennas be painted a neutral color or remain unpainted for a period of six months.during which time the galvanized finish will naturally weather to a dull grey finish (similar to the structures carrying high voltage electricity seen in open space settings throughout the County). The Community Development Director's approval imposed nine conditions of approval (as detailed in the staff recommendation at the end of this report). Staff believes these conditions adequately address the potential impacts associated with this project and therefore staff recommends that the Community Development Director's approval of the project be upheld. OTHER DEPARTMENT COMMENTS Other Department comments are included as conditions of approval ALTERNATIVES 1. Continue with direction to staff and the applicant regarding the need for additional information and/or redesign. 2. Deny the project based on findings. RECOMMENDATION Uphold the Community Development Director's decision and grant final approval of the project with the following findings and conditions to return to staff for approval. Findings: 1. As conditioned, the proposed new antenna and modifications to the existing antenna and monopole will be consistent with the General Plan policies governing hillside development by: (a)including planting which is compatible with native hillside vegetation and which provides a visual transition from developed to open areas; and(b)utilizing materials, colors and textures which blend with the natural landscape and avoid high contrasts. 2. The proposed new antenna and modifications to the existing antenna and monopole comply with property development standards in the C/OS40 zone with the approval of an administrative use permit. 3. The proposed new antenna and modifications to the existing antenna and monopole will not adversely affect the health, safety and welfare of the persons living or working in the vicinity 5-24 fi-�. ARC 36-00,Pacific Bell Wireless Page 9 because they have been designed in such a way as to minimize visual impacts to adjacent properties and the City as a whole. 4. As conditioned,the proposed new antenna and modifications to the existing antenna and monopole will be consistent with ARC guidelines which call for minimizing the visual impacts of hillside development 5. The proposed monopole height extension of the Nextel monopole is consistent with the Architectural Review Commission's December 1, 1997 approval of a maximum combined height of the monopole and antennas to accommodate three carriers(approximately 60 feet). 6. The proposed modifications to NexteFs antenna equipment results in fewer and smaller pieces of equipment(no whip antennas and a six foot wide overall diameter)than the Architectural Review Commission's December 1, 1997 approval ofNextel's request for 15 directional antennas(1 foot x 4 feet in size)and 3 whip antennas (13 feet in height)within a 16 foot wide diameter. Conditions: 1. The applicant shall obtain use permit approval. 2. Maximum combined height of the monopole and antennas shall not exceed 60 feet. 3. The monopole shall be a constructed of a galvanized metal and have a tapered design to allow the co-location of a total of three carriers. 4. Prior to finaling the building permit for this monopole extension,the Building Inspector shall confirm that the monopole has been erected in a true vertical position and it is not leaning. 5. The monopole and antennas shall be painted a neutral color at the time of construction or allowed to remain unpainted for a period of six months during which time the galvanized finish will naturally weather to a dull gray finish. After the six month period has ended,the Director of Community Development will determine whether or not the applicant needs to paint the features to further lessen their visual impact. 6. The cabinet equipment associated with the monopole and antennas shall be located within the existing equipment shelter as shown on submitted plans. To ensure inside of the shelter visually blends into the hillside,the applicant shall paint the remainder of the inside of the shelter to match the existing portions of the interior that have already been painted. 5-25 Mwct1 ARC 36-00,Pacific Bell wireless Page 10 7. The applicant shall submit written evidence of the right to access the site by way of neighboring private properties. If permanent access is granted,the applicant shall enter into an agreement with the City to share the cost of ongoing maintenance of the road prior to approval of a building permit. If construction only access is granted,then arrangements shall be made with the Fire Department to guarantee any required restoration and/or repairs needed to the roadway as a result of any damage caused by the applicant's contractor(s) during construction,as determined by the City. 8. All areas disturbed by the construction and areas around the equipment shelter where reseeding has not been successful to date shall be reseeded by the mixture of Eschscholzia califomica(California poppy),Lupinus suculentus(lupine),Nassella lepida(needlegrass)and Nassella pulchra(purple needlegrass). The hydroseed mix shall be in a wood fiber mulch with no fertilizers or nutrients added. 9. Native Sons Nursery shall be contacted to see if there is an available source of plants,bulbs, or seeds for the San Luis Mariposa Lily. Unless unavailable,these shall be included in the revegetation of the site. Attachments: Vicinity map Nextel response letter Administrative use permit approval letter ARCMI approval letter Appeal letter and follow up letter Letter from Villa Fontana HOA Applicant letter/Project description Project plans (including photo simulation) Note: If Commissioners wish to look at the site from several vantage points, the following are some suggested viewing areas: Highway 101,traveling north from Los Osos Valley Road Tank Farm Road Bishop Street, southwest of Augusta Street South Street Highway 101,traveling south from Osos Street 5-26 elf• � -- Ifl� In N city of sAn tuis OBISPO 990 Palm Street, San Luis Obispo, CA 93401-3249 April 11, 2000 Pacific Bell Wireless 2521 Michelle Drive, 2nd Floor Tustin, CA 92780 SUBJECT:. Use Permit Appl. A 36-00 0 Higuera Street Dear Applicant: On Friday, April 7, 2000, I conducted a public hearing on your request to allow telecommunications.equipment on an existing antenna pole, at the above location. After reviewing the information presented, I approved your request, based on the following findings and subject to the following conditions and code requirements: Fines 1. The proposed use will not adversely affect the health, safety or welfare of persons living or working at the site or in the vicinity because mitigation measures have been established to ensure the proposed facility will not interfere with the existing municipal radio facilities which are used for the coordination of emergency response. 2. The use is appropriate at the proposed location which has been designated by the City for this use and will be compatible with surrounding open space land uses. 3. The proposed use conforms with the general plan, specifically hilliside protection policies in the Land Use and Open Space Elements, and meets zoning ordinance requirements for wireless telecommunications antennas with the approval of this administrative use permit. 4. The mitigated Negative Declaration (ER 55-97) prepared for Nextel Communications (applicant for the existing monopole) adequately addresses potential environmental impacts of the project. Conditions 1. All mitigation measures associated with ER 55-97 (Nextel Communications) shall apply to this project. These mitigation measures are as follows: ® The City of San Luis Obispo is committed to include the disabled in all of its services, programs and activitwS-2•7 Teleeommrmiptiors Device tar the Deaf(805)781-7410. (o A 36-00 Page 2 All disturbed sites shall be reseeded by the mixture of Eschscholzia califomica (California poppy), Lupinus suculentus (lupine), Nassella lepida (needlegrass) and Nassella pulchra (purple needlegrass). The hydroseed mix shall be in a wood fiber mulch with no fertilizers or nutrients added. Native Sons Nursery shall be contacted to see if there is an available source of plants, bulbs, or seeds for the San Luis Mariposa Lily. Unless unavailable, these shall be included in the revegetation of the site. The use permit shall be subject to immediate suspension and possible revocation in the event the cellular transceiver facility results in radio interference with municipal radio operations necessary for field work and emergency response coordination. The applicant shall be responsible for the cost of identifying the source of the interference in the event Pacific Bell Wireless equipment or operation procedures are identified as the probable . cause of interference. The.applicant shall submit an agreement for review and recordation outlining an action plan for correcting radio interference that may occur subsequent to installation of the cellular transceiver facility to the satisfaction of the Fire Chief. 2. The applicant shall secure architectural approval for the proposed use prior to issuance of building permits and/or occupancy. 3. The applicant shall submit an agreement for review and recordation granting the City the right to access the Pacific Bell Wireless site and inspect equipment upon request. 4. A radio frequency analysis shall be submitted to the City for review and approval prior to the issuance of a building permit if requested by the Fire Chief. 5. The applicant shall make arrangements with the Fire Department (together with a guarantee and deposit as determined by the City) to guarantee any required restoration and/or repairs to the access roadway easement needed as a result of any damage caused by the applicant's contractor(s) during construction, as determined by the City. Cede Req uir _m _nt 1. Levels of radio• frequency radiation shall not exceed American National Standards Institute safety standards for the general public. 5-28 �1 !1 mU1 • }� A 36-00 Page 3 Due .-to City water allocation regulations, my approval expires after three years if construction has not started, unless conditions of approval designate•a different time period. See Municipal Code Section 17.58.070.D. for possible renewal. If your project involves building one or more new dwellings or additional non-residential space, it may be subject to the requirement for a water allocation or a water usage offset. Contact this department for details. My decision is final unless appealed to the Planning Commission within 10 days of the action. Any person aggrieved by the decision may file an appeal. If you have any questions, please call Peggy Mandeville at 781-7175. Sincerely, - Ro d Whisen nd Hearing Officer cc: SLO County Assessor's Office O'Neal Communications 18500 Von Karman Avenue, Suite 870 Irvine, CA 92612 Katherine Spangler, Etal 664 Marsh Street San Luis Obispo, CA 93401 5-29 city of sAn tuiS OBISPO 990 Palm Street, San Luis Obispo, CA 93401-3249 April 18,2000 Roy Yonemoto O'Neal Communications 18500 Von Karman Ave., Suite 870 Irvine,CA 92612 SUBJECT: ARC NII 36-00,0 Higuera Street Architectural review of new telecommunications equipment on an existing monopole and modifications to existing Nextel equipment. Dear Mr.Yonemoto: I have reviewed your plans(dated 3/28/00) for the architectural review of new telecommunications equipment on an existing monopole and modifications to existing Nextel equipment at the above address, and determined that it is minor or incidental because future carriers on existing monopoles require minor or incidental architectural review rather than Architectural Review Commission review. The requested architectural review is approved, based on the following findings and subject to the following conditions: Findings: 1. As conditioned,the proposed new antenna and modifications to the existing antenna and monopole will be consistent with the General Plan policies governing hillside development by: (a) including planting which is compatible with native hillside vegetation and which provides a visual transition from developed to open areas; and(b) utilizing materials, colors and textures which blend with the natural landscape and avoid high contrasts. 2. The proposed new antenna and modifications to the existing antenna and monopole comply with property development standards in the C/OS-40 zone with the approval of an administrative use permit. 3. The proposed new antenna and modifications to the existing antenna and monopole will not adversely affect the health, safety and welfare of the persons living or working in the vicinity because they have been designed in such a way as to minimize visual impacts to adjacent properties and the City as a whole. ® The City of San Luis Obispo is committed to include the disabled in all of its services, programs and aclivit&30 Tetecornmunicahons Device for the Deaf(805)781-7410. ARC Ml 36-00,Pacific Bell Wire. 0 Higuera Street __ Page 2 4. As conditioned, the proposed new antenna and modifications to the existing antenna and monopole will be consistent with ARC guidelines which call for minimizing the visual impacts of hillside development. 5. The proposed monopole height extension of the Nextel monopole is consistent with the Architectural Review Commission's December 1, 1997 approval of a maximum combined height of the monopole and antennas to accommodate three carriers(approximately 60 feet). 6. The proposed modifications to Nextel's antenna equipment results in fewer and smaller pieces of equipment(no whip antennas and a six foot wide overall diameter)than the Architectural Review Commission's December 1, 1997 approval of Nextel's request for 15 directional antennas(I*foot x 4 feet in size)and 3 whip antennas(13 feet in height)within a 16 foot wide diameter. Conditions: 1. The applicant shall obtain use permit approval. 2. Maximum combined height of the monopole and antennas shall not exceed 60 feet. 3. The monopole shall be constructed of a galvanized metal and have a tapered design to allow the co-location of a total of three carriers. 4. Prior to finaling the building permit for this monopole extension, the Building Inspector shall confirm that the monopole has been erected in a true vertical position and it is not leaning_ 5. The monopole and antennas shall be painted a neutral color at the time of construction or allowed to remain unpainted for a period of six months during which time the galvanized finish will naturally weather to a dull gray finish. After the six month period has ended,the Director of Community Development will determine whether or not the applicant needs to paint the features to further lessen their visual impact. 6. The cabinet equipment associated with the monopole and antennas shall be located within the existing equipment shelter as shown on submitted plans. To ensure inside of the shelter visually blends into the hillside, the applicant shall paint the remainder of the inside of the shelter to match the existing portions of the interior that have already been painted. 7. The applicant shall submit written evidence of the right to access the site by way of neighboring private properties. If permanent access is granted, the applicant shall enter into an agreement with the City to share the cost of ongoing maintenance of the road prior to approval of a building permit. If construction only access is granted, then arrangements shall be made with the Fire Department to guarantee any required restoration and/or repairs needed to the roadway as a result of any damage caused by the applicant's contractor(s) during construction, as determined by the City. 5-31 ARC Ml 36-00, Pacific Bell Wir. 0 Higuera Street _ Page 2 8. All areas disturbed by the construction and areas around the equipment shelter where reseeding has not been successful to date shall be reseeded by the mixture of Eschscholzia californica(California poppy),Lupirius suculentus (lupine),Nassella lepida(needlegrass) and Nassella pulchra(purple needlegrass). The hydroseed mix shall be in a wood fiber mulch with no fertilizers or nutrients added. 9. Native Sons Nursery shall be contacted to see if there is an available source of plants,bulbs, or seeds for the San Luis Mariposa Lily. Unless unavailable, these shall be included in the revegetation of the site. My action is final unless appealed within 10 calendar days of the date of this letter. Anyone may appeal the action by submitting a letter to the Community Development Department within the time specified. Appeals will be scheduled for the first available Architectural Review Commission meeting date. If an appeal is filed,you will be notified by mail of the date and time of the hearing. If you have.any questions, please call Peggy Mandeville at 781-7175. S' cer?�ly, Arnold B. Jonas, D re or Community Develo ent Pacific Bell Wireless, 2521 Michelle Dr., 2"d floor, Tustin, CA 92780 Mike Spangler, 664 Marsh St., San Luis Obispo, CA 93401 Guy Hackman, P.O. Box 1400, San Luis Obispo, CA 93406 Villa Fontana HOA, 3563 Empleo St., Suite B, San Luis Obispo,CA 93401 Chumash HOA, Chumash Village Mobile Home Park,2251-C, Broad St., SLO, 93401 Architectural Review Commission Chairman Chief Building Official Development Review Manager 5-32 ,wZ:l .......... .... .... ... m mz NO ti Fl. AN At, !q5IM §M: r 150 .ate I ........... V4 7W rl, VMS O:k e.L. Nc IN F" 24 X� LETTER 10.00 San Luis Obispo, 5-25-2000 To City of San Luis Obispo C/O.: Peggy Mandeville Ref: South Street HHI Antenna Frg e&Hearing Decision I am still appealing.application ARC 36-00 regarding the incidental architectural review decision. In no specific order,these are my reasons: 1) Alternatives to the decision could be discussed in greater detail. a. color of shuctu= b. incorporating plant materials c. disguising antennas and other structures Regarding the use permit. . 2) Researching alternative sites. I am also concerned about a statement in the letter addressed to me dated May 16th 2000 which states : The Commission's approvals also did not include the requirement to make the monopoles look like trees, or to plant trees around the site, because the inclusion of trees along the ridgeline would look unnatural given-the fact that serpentine rock hillsides such as this one do not support trees under natural circumstances.Thus, the appearance of trees,or tree camouflage,would appear as unnatural on the ridge as the antennas. Did this hillside ever support a greater abundance of plant materials before possible fires or before grazing was allowed? What is your definition of unnatural in regards.to fhis statement? Almost everyone I've talked to would like to see plant materials or another type of camouflage at this site. I will go into more detail at the next hearing. Si nc iy, RECEDED MAY L 6 2000 ZarryStabler a k Y of SM LU16 Uwa-U COMMUNITY oEMOPUM 5-34 4-07-200 1.0:28X-1 FROM P. 1 VELLA FONTANA HOMEOWNERS ASSOCIA11ON 3563 Empleo Street, Suite B, San Luis Obispo CA 93401 (805) 544- 9093 (Fax) 544 - 6215 April 7, 2000 Peggy Mandeville City of San Luis Obispo Planning Department 990 Palm Street San Luis Obispo, CA 93401 Re: Pac Bell Telecommunications Application #A36-00 Dear Ms. Mandeville, The Board of Directors of the Villa Fontana Homeowner's Association would like the city to require view mitigation measures for the telecommunications area at 0 Higuera Street. Over the years, more than a few antennas and other equipment has been placed on the hill. When it was a lone radio antenna, the impact was minimal. Now, after speaking with several residents of.Villa Fontana, the Board is requesting that the city require trees and shrubs be planted around this area to mitigate the view of the residents of Villa Fontana. If a landscaping solution is not feasible, perhaps the Planning Department can suggest other measures that would be suitable. The Board is also concerned about any heavy equipment that could cause damage to the streets if driven on the roads at Villa Fontana. We would like to be informed if there will be any heavy equipment driven on Vifla Fontana's roads. Thank You, hJim17-Hobbs Agnt to the Board cc: Board of Directors vrw.ravmaome 5-35 &7"r" to O 'NEAL - COMMUNICATIONS GROUP, INC. Project Description 5972-01:South Street Sill, 2877 South.KZguera Street,San Luis Obispo, California 93401 APM #053-021-031 Pacific Bell Wireless(PBW)is formally requesting the review/approval of their proposal to establish a wireless telecommunications facility at 2877 South Higuera Street, San Luis Obispo,California. PBW's proposal requests the authorization for the construction,use,and maintenance of an unmanned wireless telecommunications facility which further enhances PBW's wireless network The development of this portion of the network will allow its customers seamless access to PBW's nationwide network of serv- ices. The proposed facility will be in operation 24 hours per day, 7 days a week and will only require routine maintenance once every 4 to 6 weeks. The proposed facility would consist offa*j panel antennas,vx.0 Low Noise Amplifiers(LNAs),two (2)Base Transceiver Station electronic equipment cabinets,and one equipment rack on a unistrut frame. Each antenna panel has an approximate outside dimension of 4W'tall x 8"wide x 2"thick The LNAs measure only 12"x 12"x 4". The BTS cabinets measure approximately 6'x 4'x 2'. The existing Nextel monopole is 35 feet tall with three(3)omni-whip antennas at the top. (Overall height is approximately 48 feet) As part of PacBell's proposal,the Nextel whips will be removed and a 25-foot tall extension will be added to the existing monopole. Overall height of the new structure will be 60 feet. Instead of the original omni whip antennas,Nextel will install fifteen panel antennas at the top of the new structure. PacBell's proposed antennas and LNAs will be placed below Nextel's antennas at an approximate height of 50 feet. Overall height of the new structure, including antennas, will not ex- ceed sixtyfeet. PacBell's proposed BTS equipment cabinets will be placed inside the existing equipment enclosure adja- cent to the monopole. They will not be visible from the surrounding area. All coaxial cable and utility runs will be pulled through underground conduit. Pacific Bell Wireless,a subsidiary of Pacific Bell telephone company,has set their goals to become the premier wireless provider to bring a superior,more cost-effective and secure personal communication services(PCS)wireless communications network to the Southern California market Wireless communi- cations are transmitted through the air by radio frequencies. The two oldest forays are cellular and en- hanced specialized mobile radio(ESMR),both of which are transmitted by radio waves. The newest form of wireless communications,personal communications services(PCS), is transmitted by higher fre- quency radio waves. PCS is the next generation of wireless communications. Consumers of PCS will be offered more affordable services such as voice communication,caller identification,paging, facsimile services,E-mail,video telecommunications,and cellular digital data communications(CDPD). Eventuu ally, customers may have one single phone number for many of those services,regardless of location. Wireless communication is accomplished by linking a wireless network of radio wave transmitting de- vices such as portable and car phones,to the conventional telephone system through a series of short- 18500 Von Karrnan Avenue,Suite#870, Irvine,California 92612 Phone:949.477.3010 Fax 949.477.3063 5-36 rllJ►1(,�1� ca O 'NE AL - COMMUNICATIONS GROUP, INC. range,contiguous cells. Similar to honeycomb pattern,a cellular system is composed of many neigh- boring and interconnecting"cell site,"or geographical areas. Each cell site within the system contains transmitting and receiving antennas. As a customer enters one cell and exits another,thb call is trans- ferred between the cells by a computer. Calls can originate or be received from a wireless source because antennas share a fixed number of fre- quencies across the network grid. That is,while a caller may dial his/her destination number from within the radius of one cell antenna;then travel into the radius of another during the call. At the same time,the call is handed off from one antenna to the next While the caller is moving,the provider's antennas are automatically locating an unoccupied frequency on the next antenna,thus-enabling continuous,uninter- rupted transmission. The distance between antenna sites will normally range from V2 mile to 9 miles,depending on the popu- lation density,consumer usage,existing vertical elements,and the geographical terrain. And,while PCS requires more antenna sites,they are generally not as large or obtrusive as conventional cellular sites, some of which require huge housings the size of an 8'x 12'room. In order to have a clear line-of--site, antennas must be mounted high enough to overcome challenges posed by local topography and develop- ment The required height is usually proportional to a combination of the distance antennas can cover and the demand for PCS service within their sphere of influence. Antennas can be mounted on free- standing towers,guyed towers,and lattice,or self-support towers. Antennas can also be placed on roof- tops,integrated into the building's architecture,and other building features if the building's height can accommodate the service area. Wireless facilities are located throughout the service area to provide ade- quate call coverage,capacity and quality. The following are some of the basic types of cell sites: Coverage sites serve to expand coverage in large areas or.in areas with difficult terrain and to enhance coverage for portable systems. Coverage sites allow users to make and maintain calls as they travel be- tween cells. Capacity sites serve to increase the capacity when surrounding sites have reached their practical channel limits. As the years pass, the number of subscribers increases exponentially creating a strain on the ex- isting network "In order to alleviate this strain, capacity sites are implemented into the systems network to accommodate the increase in customer demand. PCS is basically an expanded,more advanced and cost-effective network than the current cellular and ESMR systems. Like cellular,the PCS system uses wireless access and is designed with mobility needs in mind. PCS will employ transmission stations that carry and hid-off phone signals as the caller moves from one area to another. The PCS systems will work at the 1900 Mhz frequencies and will incorporate all the services—and more—available from the current cellular systems. Like the ESMR systems,the PCS system is a digital technology with an 8:1 ratio of voice channel to cellular. This allows for greater system capacity—far beyond that of cellular. PCS digital technology,a GSM based technology,uses highly encrypted signaling malting eavesdropping on a call nearly impossible. The encryption and en- coding algorithms are highly advanced requiring a would be eavesdropper to listen to the signal for days before they could decode it(unlike cellular where it take merely minutes). 18500 Von Kansan Avenue,Suite#870, Irvine,California 92612 Phone:949.477.3010 Fax 949.477.3063 5-37 O 'NEAL COMMUNICATIONS GROUP, INC. A key advantage of the PCS technology is the advanced features. In a cellular system a highly mobile user would require a cellular phone,pager,and cellular modem. The PCS technology incorporates all those devices into one—the phone. A PCS phone acts as pager,cellular phone,and modem. The PCS system also has short message services,which allow the user to receive and send short messages to/from the mobile phone. Unlike the conventional paging system,if the user's phone is not turned on,the mes- sage will be saved and sent when the user is ready. The PCS system allows the user to define when and where they want to make or receive calls. The PCS system user can be assigned a single number and through a follow me calling technique,the system will route the call to the user wherever they are. In summmary,the PCS system incorporates all the technological advances made by the cellular and ESMR systems to provide a single platform for mobility. Since their introduction,wireless telecommunications systems have proved to be an invaluable commu- nications tool in the event of emergencies(traffic accidents,fires, etc.)and natural disasters(earthquakes, floods,etc.)where normal land line communications are often disrupted,overlooked,or inaccessible during and after an event has occurred. This service and similar technology are utilized by numerous governmental and quasi-governmental agencies that provide emergency service. Wireless telecommrmi- cations systems,including cellular telephones,have also proved to be invaluable tools in business com- munications and everyday personal use. In this sense,wireless teleconanunications system networks have proved to be desirable in the interest of public convenience,health, safety,and welfare. Unlike other land uses,which can be spatially determined through the General Plan or other land use plans,the location of wireless telecommunications facilities are based on technical requirements which include service area, geographical elevations,alignment with neighboring sites and customer demand components. Placement within the urban geography is dependent on these requirements. Accordingly, wireless telecommunication facilities have been located adjacent to and within all major land use catego- ries including residential,commercial, industrial,open space,etc.proving to be compatible in all loca- tions. The proposed facility at the subject location will be unmanned,have no impact on circulation systems,and generate no noise,odor, smoke,or any other adverse impacts to adjacent land uses. The proposed facility will allow commuters and residents within the coverage area wireless access to the rapidly expanding communications infrastructure by providing voice and data transmission services not currently available. The installation of antenna sectors and transmission equipment will not result in any material changes to the character of the local community. This proposed wireless telecommunications facility will operate in full compliance with all state and federal regulations including the Telecommuni- cations Act of 1996. 18500 Von Karrnan Avenue,Suite#870, Irvine,California 92612 Phone:949.477.3010 Fax 949.477.3063 5-3" J L 'MeE -..-...u. s ....�.4 — aasx m um woua am �m s� � u wr t 7CfE'Iq moa7sm ul Rrr Y - SS313ULM RT se -anox� � g i `��©9 sxouv�Exni ao =�.z o i�3 #6 g slab a Is ®® 26 A N ZS p Y� J !,9 dE �1 iAiO fU � r 5-39 OOOZ 21 :90 3FT OE AeW ani 6MP-T-V-[0-ZL6-tl-J\T-B\S.a0\S0-2L6'Vl\M8d\ :0 J L . •{a' ®L16�lOIG4Ri 1011RSRtl a�w.(rq w+e::: '-"�� . 77777LL��L L�1'7 iS uYi � Al'se • ® U 112J� p0?J M J SlQOLLYJINIINIIKOJ I1�iZ�Lo®�a�.H ls�i t i ,H� E .6 ,tib 0 9 e0 � tis E SRI , 0 � r 5-40 0002 62 :90 :171 06 Aew ani 6Mp'2—V-10—U64l\1-9\5.00\10-216=V1\M9d\ :0 DRAFT ARCHITECTURAL REVIEW COMMISSION June 19, 2000 - 5:00 p.m. Council Hearing Room, 990 Palm Street San Luis Obispo, CA PRESENT: Commissioners Zeljka Howard, Chairperson Charles Stevenson, Mark Chandler, Rob Schultz and Jim Lopes ABSENT: Mark Rawson, Jennifer Metz STAFF: Development Review Manager Ron Whisenand, Associate Planner Pam Ricci PROJECTS: 1. 0 Hiquera Street. ARC 36-00; Appeal of Directors approval allowing new telecommunications equipment on an existing pole and modifications to existing Nextel equipment; C/OS-40 zone; Pacific Bell Wireless, applicant; Larry Stabler, appellant. Continued from June 5, 2000. Peggy Mandeville. Pam Ricci, Associate Planner, presented the staff report recommending the Commission uphold the Community Development Director's decision and grant final approval to the project, based on findings, and subject to conditions and code requirements, which she outlined. Commr. Schultz asked Pam Ricci for clarification regarding the number and sizes of antennae proposed. He reiterated from the staff report and Pam Ricci indicated that his summary was correct. Commr. Chandler asked for the authority in requiring additional landscaping on the hillside. Ron Whisenand responded that the Commission needed to keep in mind the particulars of this request, which is to add antennae to an approved monopole, rather than an entirely new request. He also noted that the equipment in the bunker will be screened. Commr. Lopes asked whether full visual analysis as required by the General Plan had been done. Pam Ricci pointed out the photo simulations submitted with the current application and noted that other similar analyses had been done with earlier approvals. The public hearing was opened. Roy Yonemoto, representative for Pack Bell Wireless, explained that the City Council identified this site to minimize the proliferation of wireless sites. Landscaping is a 5-41 DRAFT problem because there is no irrigation system and large trees will block signals by causing interference. He noted that monopole height had been previously approved and proposed Nextel antennas will be fewer and smaller. Appellant Lary Stabler mentioned that health impacts were an additional issue with the antennae installation, but that his main concern was still aesthetics. He noted that he would like alternative sites explored, and mentioned speaking with Neil Havlik about various native tree species that might adapt well to the site. He suggested a beige- colored compound to blend better with the hillside. Commr. Lopes asked about moving the equipment lower on the pole. Mr. Yonemoto explained that Nextel needs height to get a clear signal.and providers need to be adequately separated on the monopole. Ross Hightower indicated that this site is critical for customer coverage and he urged the ARC to approve the application. He suggested Melaleuca as a suitable tree planting on the hillside. Dave Spaur of Economic Vitality Corp. spoke in support of not delaying the application. He noted the gap in south San Luis Obispo for wireless service. Gayle Rosenburger of Sendero Court said that she was originally under the impression that the site was set aside for City emergency services. She understood that towers would be limited and would like to see some mitigation for the neighbors. Lary Kay said that he will be working with a third carrier on the pole and that the pole is already approved at the side. Commr. Lopes asked Larry Kay about other configurations for Nextel, and Mr. Kay said that the Nextel antenna configuration was designed to suit their needs. The public hearing was closed. COMMISSION COMMENTS Commr. Chandler said that he understands the limitations on the Commission's purview regarding the height of the monopole, but would also like to see additional landscaping installed if possible. Commr. Howard stated that she was interested in staffs suggestion to have the City Council review the General Plan policy regarding the potential need for further improvements to lessen aesthetic impacts. Commr. Shultz said that he agrees with Commr. Howard that. the ARC's purview is limited at this time and he also concurs with the staff recommendation. 5-42 DRAFT - Commr. Lopes said that he feels that visual analysis is needed to address impacts from the other side of the hill. He said that full attention needs to be given to the General Plan policy and that a full analysis of visual impacts is important. He feels that the pole looks top-heavy and would like to have the arrays closer to the pole and mounted one above the other. He also suggested having improvements installed by one applicant who would be reimbursed by other users of the pole in the future. Commr. Stevenson said that he does not believe in further delaying this project. He commented that he was uncomfortable in finding a nexus for landscaping with this application and that he would like to explore the possibility for further screening as a separate motion before the Commission. He brought up some points made in a letter from Nextel regarding fewer antennae being needed with installation in the office zone on Mill Street (872 Morro). Ron Whisenand said that the City would require a zone reclassification for this purpose. On a motion by Commr. Schultz, and seconded by Commr. Howard, the ARC denied the appeal, upholding the Community Development Directors decision, and granted final approval to the project, based on findings, and subject to conditions. The ARC did add a condition which required the applicant to explore with Nextel the possibility of having two arrays of antennas, one above the other, that results in the antennas being mounted more closely to the monopole than shown on submitted plans for ARC consideration. AYES: Commrs. Schultz, Howard, Chandler, Stevenson, and Lopes NOES: None ABSENT: Commrs. Rawson and Metz The motion passed. Commr. Howard asked staff how the ARC could have the City Council revisit the General Plan policy regarding telecommunication facilities. Ron Whisenand replied that it would need to be made through a separate motion. The Commission also approved a second motion by Commr. Howard, and seconded by Commr. Chandler, which asked staff to prepare a memo to the City Council requesting that they reevaluate the General Plan policy regarding the consolidation of telecommunication facilities in a designated leasehold on the South Street hills. They specifically asked that the placement and screening of monopoles be further studied, as well as the appropriateness of locating new facilities on other sites within the City. AYES: Commrs. Howard, Chandler, Stevenson, Schultz and Lopes NOES: None ABSENT: Commrs. Rawson and Metz The motion passed. 5-43 II Acity of sAn IwS OBISPO 990 Palm Street, San Luis Obispo, CA.93401-3249 June 21, 2000 Pacific Bell Wireless 2521 Michelle Drive, 2nd Floor Tustin, CA 92780 SUBJECT: ARC 36-00 0 Higuera Street Dear Applicant: The Architectural Review Commission, at its meeting of June 19, 2000, denied the appeal on your project, upholding the Community Development Director's decision, and granted final approval to the project, based on the following findings, and subject to the following conditions: Findings 1. As conditioned, the proposed new antenna and modifications to the existing antenna and monopole will be consistent with the General Plan policies governing hillside development by: (a) including planting which is compatible with native hillside vegetation and which provides a visual transition from developed to open areas; and (b) utilizing materials, colors and textures which blend with the natural landscape and avoid high contrasts. 2. The proposed new antenna and modifications to the existing antenna and monopole comply with property development standards in the C/OS-40 zone with the approval of an administrative use permit. 3. The proposed new antenna and modifications to the existing antenna and monopole will not adversely affect the health, safety and welfare of the persons living or working in the vicinity because they have been designed in such a way as to minimize visual impacts to adjacent properties and the City as a whole. 4. As conditioned, the proposed new antenna and modifications to the existing antenna and monopole will be consistent with ARC guidelines which call for minimizing the visual impacts of hillside development. �� The City of San Luis Obispo is committed to include the disabled in all of its services, programs and activiti€s 44 Telecommunications Device for the Deaf(805)781-7410. ARC 36-00 Page 2 5. The proposed monopole height extension of the Nextel monopole is consistent with the Architectural Review Commission's December 1, 1997 approval of a maximum combined height of the monopole and antennas to accommodate three carriers (approximately 60 feet). 6. The proposed .modifications to Nextel's antenna equipment results in fewer and smaller pieces of equipment (no whip antennas and a six foot wide overall diameter) than the Architectural Review Commission's December 1, 1997 approval of Nextel's request for 15 directional antennas (1 foot x 4 feet in size) and 3 whip antennas (13 feet in height) within a 16 foot wide diameter. Conditions 1. The applicant shall obtain use permit approval. 2. Maximum combined height of the monopole and antennas shall not exceed 60 feet. 3. The monopole shall be a constructed of a galvanized metal and have a tapered design to allow the co-location of a total of three carriers. 4. Prior to finaling the building permit for this monopole extension, the Building Inspector shall confirm that the monopole has been erected in a true vertical position and it is not leaning. 5. The monopole and antennas shall be painted a neutral color at the time of construction or allowed to remain unpainted for a period of six months during which time the galvanized finish will naturally weather to a dull gray finish. After the six month period has ended, the Director of Community Development will determine whether or not the applicant needs to paint the features to further lessen their visual impact. 6. The cabinet equipment associated with the monopole and antennas shall be located within the existing equipment shelter as shown on submitted plans. To ensure inside of the shelter visually blends into the hillside, the applicant shall paint the remainder of the inside of the shelter to match the existing portions of the interior that have already been painted. 7. The applicant shall submit written evidence of the right to access the site by way of neighboring private properties. If permanent access is granted, the applicant shall enter into an agreement with the City to share the cost of ongoing maintenance of the road prior to approval of a building permit. If construction only access is granted, then arrangements shall be made with the Fire Department to guarantee any required restoration and/or repairs needed to the roadway as a result of any damage caused by the applicant's contractor(s) during construction, as determined by the City. 5-45 -►. ARC 3"0 Page 2 _. 8. All areas disturbed by the construction and areas around the equipment shelter where reseeding has not been successful to date shall be reseeded by the mixture of Eschscholzia califomica (California poppy), Lupinus suculentus (lupine), Nassella lep'ida (needlegrass) and Nassella pulchra (purple needlegrass). The hydroseed mix shall be in a wood fiber mulch with no fertilizers or nutrients added. 9. Native Sons Nursery shall be contacted to see if there is an available source of plants, bulbs, or seeds for the San Luis Mariposa Lily. Unless unavailable, these shall be included in the revegetation of the site. 10. The applicant shall explore with Nextel the possibility of having two arrays of antennas, one above the other, that results in the antennas being mounted more closely to the monopole than shown on submitted plans for ARC consideration. The total height of the monopole with the possibly modified array of antennas shall not exceed 60 feet. The decision of the Commission is final unless appealed to the City Council within 10 days of the action. If you have questions, please contact Peggy Mandeville at (805) 781-7175. Sincerely, Ronald Whisenand Development Review Manager cc: County of SLO Assessor's Office Katherine Spangler 664 Marsh Street SLO, CA 93401 O'Neal Communications 18500 Von Karman Ave., Suite 870 Irvine, CA 92612 Larry Stabler 5-46